In the interests of justice or to promote judicial economy,
the Commission may, except as otherwise provided by the rules in this
Subchapter, waive or vary the requirements or provisions of any of the rules in
this Subchapter in a case pending before the Commission upon written
application of a party or upon its own initiative only if the employee is not
represented by counsel. Factors the Commission shall use in determining
whether to grant the waiver are:

(1) the necessity
of a waiver;

(2) the party's
responsibility for the conditions creating the need for a waiver;